Justice Reinvestment Act Implementation Evaluation Report

Transcription

1 North Carolina Sentencing and Policy Advisory Commission Justice Reinvestment Act Implementation Evaluation Report Project Conducted in Conjunction with the Division of Adult Correction and Juvenile Justice of the North Carolina Department of Public Safety Submitted pursuant to N.C. Gen. Stat (2016) April 15, 2017 The Honorable W. Erwin Spainhour Chairman Michelle Hall Executive Director

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3 NC SENTENCING AND POLICY ADVISORY COMMISSION MEMBERSHIP Hon. W. Erwin Spainhour, Chairman Superior Court Judge Art Beeler Lieutenant Governor s Appointee Hon. Charles E. Brown NC District Court Judges Association Sheriff James E. Clemmons NC Sheriffs Association Lisa Costner NC Bar Association Hon. Warren Daniel State Senator Louise Davis NC Community Sentencing Association Hon. Richard A. Elmore NC Court of Appeals Hon. Robert C. Ervin NC Conference of Superior Court Judges Hon. John Faircloth State Representative Christopher Fialko NC Advocates for Justice Willis Fowler NC Post-Release Supervision & Parole Commission David Guice NC Department of Public Safety Hon. Darren Jackson State Representative Ilona Kusa NC Victim Assistance Network Hon. Floyd McKissick State Senator Dr. Harvey Lee McMurray Academic Member Hon. Allen McNeill State Representative Robert C. Montgomery NC Attorney General s Office Luther Moore NC Retail Merchants Association Hon. Fred G. Morrison, Jr. Justice Fellowship Hon. Shirley B. Randleman State Senator Hon. June Ray NC Association of Clerks of Superior Court Billy J. Sanders Commission Chairman s Appointee Hon. Thomas Thompson NC Association of County Commissioners (Vacant) NC Association of Chiefs of Police (Vacant) Private Citizen, Governor s Appointee Hon. Maureen Krueger NC Conference of District Attorneys

4 NC SENTENCING AND POLICY ADVISORY COMMISSION STAFF Michelle Hall Executive Director John Madler Associate Director for Policy, Staff Attorney Ginny Hevener Associate Director for Research Tamara Flinchum Senior Research & Policy Associate Sara Perdue Senior Research & Policy Associate Jennifer Wesoloski Research and Policy Associate Rebecca Murdock Senior Research & Policy Associate John King Research & Policy Associate Shelley Kirk Administrative Secretary P.O. Box 2448 Raleigh, NC (919)

5 TABLE OF CONTENTS I. INTRODUCTION... 1 Justice Reinvestment Implementation Report Subcommittee... 1 Background... 2 Major Provisions of the Justice Reinvestment Act... 2 Changes to the Court System... 2 Changes to Probation... 3 Changes to Prisons... 4 Changes to Post-Release Supervision... 4 Resources... 4 Effective Dates... 5 Table 1: JRA Effective Dates by Provision... 5 Related Legislation... 5 Table 2: JRA Amendment Effective Dates by Provision... 7 II. SENTENCING PRACTICES... 8 Community and Intermediate Punishments... 8 Table 3: Special Probation by Origin... 9 Habitual Felon... 9 Figure 1: Habitual Felon Prison Entries... 9 Figure 2: Habitual Felon Prison Entries and Population by Offense Class Habitual Breaking and Entering Felon Advanced Supervised Release Figure 3: Inmates Receiving ASR Sentences Expansion of Initiatives Pre-Sentence Investigation Pilot Expansion III. COMMUNITY SUPERVISION Risk and Need Assessment and Supervision Level Figure 4: Risk and Need Level for the Assessed Community Corrections Population on December 31, Figure 5: Supervision Level for the Assessed Community Corrections Population on December 31, Figure 6: Supervision Level for the Assessed Community Corrections Population on December 31, Caseloads Mental Health Random Control Study Treatment For Effective Community Supervision Figure 7: TECS Population and Entries Figure 8: Completion Rates for TECS Exits in CY Delegated Authority Figure 9: Use of Delegated Authority in Response to Violations Short-Term Jail Confinement Table 4: Quick Dip Confinement Table 5: Quick Dip Confinement by Supervision Level in CY Outcomes Following a Quick Dip Confinement... 21

6 Figure 10: Probation Outcomes by Offense Type Following Quick Dip Confinement in CY 2016 as of February 25, Table 6: Probation Outcomes by Supervision Level Following Quick Dip Confinement in CY 2016 as of February 25, Administrative Response Pilot Confinement in Response to Violations Table 7: Offenders with CRV Dispositions Table 8: Offenders with CRV Dispositions by Supervision Level in CY Outcomes After Serving a CRV Figure 11: Subsequent Violations Following a CRV Disposition in CY 2016 as of February 25, Figure 12: Outcomes Following a CRV Disposition by Offense Type in CY 2016 as of February 25, Table 9: Outcomes Following a CRV Disposition by Supervision Level in CY 2016 as of February 25, Figure 13: Risk Level Comparison of CRV Offenders and Felony Probation Entries Figure 14: Recidivist Arrest Rate Comparison of CRV Offenders and Felony Probation Entries: Two-Year Follow-Up CRV Centers CRV Center Enhancements Probation Outcomes Probation Revocation Rates Figure 15: Probation Revocation Rates Figure 16: Probation Revocations by Supervision Level in CY Felony Prison Entries Table 10: Felony Prison Entries for Probation Violations by Type IV. INCARCERATION AND REENTRY Incarceration in Local Confinement Facilities Statewide Misdemeanant Confinement Program Table 11: Year-End Misdemeanor DWI Population Table 12: Statewide Misdemeanant Confinement Program (SMCP) Prisons Advanced Supervised Release Behavioral Health Services Restrictive Housing Reentry Planning Prison Exits Exits onto PRS Figure 17: PRS Entries and Population Figure 18: PRS Entries by Offense Class in CY Violations of PRS Table 13: Felony Entries to Prison for PRS Violations by Type PRS Revocation Exits Table 14: PRS Exits and Revocations Table 15: PRS Exits by Supervision Level CY Figure 19: PRS Revocations by Offense Class and Supervision Level in CY

7 V. CONCLUSIONS Sentencing Practices Correctional Practices Effect of Justice Reinvestment on the Community Corrections and Prison Populations Figure 20: NC Community Corrections Population at Month End, June 30, 2003-December 31, Figure 21: NC Prison Population Monthly Average, July 2003-December Effect of Justice Reinvestment on Recidivism Table 16: Violation, Revocation, and Recidivist Incarceration Rates for NC Probationers Savings and Reinvestment APPENDIX A: JUSTICE REINVESTMENT IMPLEMENTATION TIMELINE APPENDIX B: LIST OF ACRONYMS... 54

8 I. INTRODUCTION In 2011, the North Carolina General Assembly directed the Sentencing and Policy Advisory Commission (Sentencing Commission) and the Division of Adult Correction and Juvenile Justice (DACJJ) of the Department of Public Safety (DPS) to jointly conduct ongoing evaluations regarding the implementation of the Justice Reinvestment Act (JRA). 1 This report constitutes the sixth report in compliance with the directive. The Sentencing Commission s implementation evaluation reports have followed the process from the early stages of implementation of the JRA to the current, more settled phase of implementation. This report highlights recent legislative changes to the JRA, policies and practices that have been adjusted in 2016, new initiatives undertaken by agencies to further the goals of the JRA, and data examining the usage of JRA tools and preliminary outcomes under the JRA. 2 The information for the report comes from updates provided by agencies at meetings of the Justice Reinvestment Implementation Report Subcommittee (see infra), from agency and organizational reports submitted to the Legislature, and from data collected by agencies. Given that the correctional system was most affected by the changes under the JRA, the management information system used by DPS, the Offender Population Unified System (OPUS), is the primary source for data presented in this report. Much of the information was obtained from DACJJ s Rehabilitative Programs and Services Section, as well as from their online Automated System Query (ASQ). Information about the Statewide Misdemeanant Confinement Program (SMCP) was obtained from the North Carolina Sheriffs Association (NCSA). 3 This first section of the report provides background on the JRA and subsequent, related legislation that made changes to it. Section II of the report includes information related to sentencing practices under the JRA (e.g., data on special probation and habitual felon status offenses). Section III provides information on community supervision including recent policy changes and data on the population of offenders under supervision in North Carolina. Section IV details the effect of the JRA on incarceration practices for both local confinement facilities and state prisons. Section V summarizes key findings from the report. Justice Reinvestment Implementation Report Subcommittee In response to the mandate to conduct ongoing evaluations of the implementation of the JRA, the Sentencing Commission established the Justice Reinvestment Implementation Report Subcommittee. The purpose of the Subcommittee is to gather information, review data when available, and report to the Commission any recommendations regarding the implementation of the JRA. The Subcommittee met two times after the submission date of the previous report (April 15, 2016): November 18, 2016, and March 24, N.C. Gen. Stat. (G.S.) See Appendix A for a full timeline of the JRA implementation. 3 See Appendix B for a full list of acronyms used in this report.

9 Background In 2009, North Carolina s executive, legislative, and judicial leadership requested technical assistance from the Council of State Governments (CSG) Justice Center to study North Carolina s criminal justice system. The bi-partisan request was made in response to the state s increasing prison population and with the hope CSG would determine ways North Carolina could curb expenditures for building prisons as well as ways to reinvest in strategies to reduce corrections spending overall. 4 From 2009 to 2010, CSG analyzed North Carolina data, examined the criminal justice system, and engaged stakeholders and policymakers to identify potential areas for improvement in sentencing, supervision, and treatment practices. CSG found that probation revocations and various sentence enhancements were two factors straining the prison system. CSG also noted the lack of supervision for many offenders leaving prison, as well as inadequately targeted treatment in the community. CSG developed and recommended a legislative package designed to increase public safety while curbing spending on corrections by reinvesting in community treatment. 5 The policy options presented by CSG were incorporated into House Bill 642, The Justice Reinvestment Act. Representatives Bordsen, Faircloth, Guice, and Parmon introduced HB 642 in the North Carolina General Assembly during the 2011 Session. Both the House of Representatives and Senate ultimately passed the legislation with overwhelming support. Governor Perdue signed the JRA into law on June 23, Major Provisions of the Justice Reinvestment Act The JRA makes changes to North Carolina s court system and corrections system (encompassing prisons, probation, and post-release supervision (PRS)). The JRA also creates a statewide confinement program for misdemeanants, refocuses community resources, creates a new habitual breaking and entering felony offense, and modifies the punishment for habitual felons. A summary of the major provisions of the JRA is provided below, by system. 6 Changes to the Court System The JRA expands the existing drug diversion program 7 to make it mandatory. All first-time offenders convicted of a misdemeanor or Class I felony possession of drugs or paraphernalia offense are placed in the program. However, the General Assembly subsequently amended the statute to allow a judge to find that an offender is inappropriate for the program 8 (see Related Legislation). 4 Due to a confluence of factors, the prison population in North Carolina has declined since Legislative changes made to the felony punishment chart in 2009, as well as changes to earned time credits made in 2011, contributed to the decline. North Carolina has also experienced changes in demographic trends (including a decrease in the rate of growth in the state s population, particularly for males ages 16-24) and decreases in crime trends overall. (For a full report on North Carolina s prison population, see NC Sentencing and Policy Advisory Commission, Prison Population Projections FY 2017-FY 2026). 5 For the full report from CSG, see Council of State Governments Justice Center, Justice Reinvestment in North Carolina, Analysis and Policy Framework to Reduce Spending on Corrections and Reinvest in Strategies to Increase Public Safety, April Additional information on the JRA is available in multiple places. See NC Sentencing and Policy Advisory Commission, Justice Reinvestment Implementation Evaluation Report, , available at The North Carolina Justice Reinvestment Act by James Markham, UNC SOG, published December 7, 2012; and 7 G.S Session Law (S.L.)

10 An habitual breaking and entering status offense is created; offenders who commit their second felony breaking and entering offense are eligible and, if convicted, are sentenced in Class E according to the felony punishment chart. 9 The existing habitual felon law is modified under the JRA; habitual felons are sentenced four classes higher than the class of the current offense, but no higher than Class C. 10 The JRA redefines Community and Intermediate punishments. 11 Community punishment is defined as any sentence other than an Active punishment, drug treatment court, or special probation (split sentence). Intermediate punishment is defined as supervised probation. It may include any other condition of probation. Drug treatment court and special probation (split sentence) are limited to Intermediate punishment sentences. The court has the discretion to impose supervised probation with no additional conditions as an Intermediate punishment. The JRA creates short periods of confinement ( quick dips ) in jail as a new condition of probation. 12 The court is authorized to impose up to six days per month in jail. This condition can be imposed as part of a Community or Intermediate punishment. Advanced Supervised Release (ASR) is created under JRA for certain offenders receiving active sentences. 13 ASR allows judges, without objection from the prosecutor, to decide at sentencing whether eligible offenders will be ordered to this prison program which, if completed, leads to their release after serving a reduced minimum sentence. Changes to Probation The JRA codifies the use of risk and need assessments as a strategy in managing offenders and allocating resources in the community and directs DACJJ to perform an assessment on all offenders. 14 Supervision and other resources are targeted based on offenders levels of risk and need. The JRA expands delegated authority for probation officers. They are authorized to impose most of the current conditions of probation and to respond to violations by imposing quick dips. The officer may impose a quick dip without a court hearing if the offender signs a waiver. 15 Under the JRA, prison time imposed for technical violations of probation (i.e., violations other than absconding or commission of a new crime) is limited. Originally, the penalty for a first or second technical violation of probation was set at 90 days imprisonment for a felon and up to 90 days for a misdemeanant. 16 Subsequently, the law was amended to eliminate the Confinement in Response to Violation (CRV) period for misdemeanants sentenced to probation under the Structured Sentencing Act (SSA) G.S G.S G.S. 15A (2), (6). 12 G.S. 15A-1343 (a1)(3). 13 G.S. 15A G.S. 15A (b1). 15 G.S. 15A (e) and (f). 16 G.S. 15A-1344(d2). 17 S.L

11 Changes to Prisons See Advanced Supervised Release above Changes to Court System. Changes to Post-Release Supervision PRS under the JRA is expanded to include all felons. After serving an active sentence, a period of nine months of supervision is required for Class F-I felons and five years of supervision is required for Class F-I felons convicted of a sex offense. The revocation period for these offenders is nine months. PRS for Class B1-E felons who are not convicted of a sex offense is expanded to twelve months; the revocation period is expanded to twelve months as well. 18 Similar to probation, prison time imposed for technical violations on PRS is limited. The penalty for a first, second, or third technical violation is set at three months of imprisonment. Upon the fourth technical violation, the Post-Release Supervision and Parole (PRSP) Commission may revoke PRS and impose the rest of the prison sentence. 19 Resources The Criminal Justice Partnership Program (CJPP) is repealed under the JRA and the Treatment for Effective Community Supervision (TECS) program is created. 20 DACJJ is authorized to enter into contractual agreements with eligible entities for the operation of community-based corrections programs. TECS focuses on certain offenders: (1) offenders convicted of a felony; (2) offenders participating in the felony drug diversion program; and (3) offenders who are identified by DACJJ to have a high likelihood of re-offending and who have a moderate to high need for substance abuse treatment. Programs eligible for funding include substance abuse treatment programs, cognitive-behavioral programming, and other evidence-based programming (EBP). Under the JRA, the SMCP is created. 21 Most misdemeanants will be housed in local jails instead of state prisons. NCSA operates the SMCP; it was funded by court costs that went to the Statewide Misdemeanant Confinement (SMC) Fund; however, the General Assembly has subsequently changed funding to a direct appropriation. 22 The SMCP finds space to house eligible misdemeanants in participating local jails. If the participating local jails are full, DACJJ houses the offenders. Originally, misdemeanants who received a sentence of between 91 and 180 days of confinement, excluding sentences for impaired driving 23 offenses, were placed under the SMCP; misdemeanants who received a sentence greater than 180 days were housed in the state prison system. However, the General Assembly subsequently amended the statutes to provide that all misdemeanants who receive a sentence greater than 90 days, and all offenders convicted of impaired driving offenses regardless of sentence length, will serve their time in participating local jails through the SMCP 24 (see Related Legislation). 18 G.S. 15A to G.S. 15A (c). 20 G.S. 143B-1150 to G.S (b2) to (b4). 22 S.L Impaired driving is also referred to as driving while impaired or DWI. 24 S.L

12 Effective Dates The JRA went into effect in 2011 and early 2012 (see Table 1). Tracking the effective dates and events that determine offender eligibility is critical to proper application of the law. The varied effective dates of the JRA created difficulties for agencies with regard to implementation. There is not a simple distinction between old and new law; practitioners must be aware of when each provision went into effect in order to determine which offenders are eligible for certain offenses, conditions, and punishments. The General Assembly has also amended the JRA (see Related Legislation), creating additional effective dates for new and amended JRA provisions which also must be tracked to ensure proper application of the law. Table 1 JRA Effective Dates by Provision Date Application Provision July 1, 2011 December 1, 2011 January 1, 2012 N/A Probation violations occurring on or after: Offenses committed on or after: Pleas or guilty findings on or after: Sentences imposed on or after: TECS program SMC Fund CRV Habitual Breaking and Entering Habitual Felon Redefine Community and Intermediate punishment Expand Delegated Authority Expand PRS Drug diversion ASR SMCP Having multiple effective dates also created some inconsistencies: for example, an offender who committed a Class F-H offense prior to December 1, 2011, but who is not found guilty until after January 1, 2012, could be eligible for the ASR program even though they would not be subject to PRS. As more time passes under the new law, however, these inconsistencies will phase out (i.e., fewer cases will have offense dates prior to December 1, 2011). Related Legislation The Legislature passed the JRA in June 2011 and has made several amendments and clarifying changes since then. Table 2 provides a list of all JRA amendments, their effective dates, and their application. The first clarifying changes came in September 2011 before the JRA went into effect. S.L clarified probation officers delegated authority for Community and Intermediate punishments. Confinement periods imposed through delegated authority must run concurrently and may total no more than six days per month for offenders on probation for multiple judgments. The legislation also specified that any time spent in confinement awaiting a hearing for a probation violation must be credited towards the CRV period, and that CRV periods must run concurrently for offenders on probation for multiple 5

13 offenses. This statute was amended in 2014 to prohibit any credit from being applied to the CRV period (see infra). In June 2012, the Legislature made additional clarifications to the JRA. S.L clarified that offenders sentenced to Community or Intermediate punishments and ordered to perform community service shall pay a community service fee. This provision became effective July 16, 2012, and applies to any community service conditions ordered as part of a Community or Intermediate punishment on or after that date. The legislation amended the requirements for probation officers exercising delegated authority to allow two probation officers to witness a probationer s waiver of rights (previously one probation officer and his/her supervisor had to witness the waiver). It also clarified that judges can impose a CRV period of less than 90 days for misdemeanants (effective July 16, 2012). The legislation provides that the period of PRS is tolled during confinement for offenders re-imprisoned for violating conditions of PRS. This provision became effective on July 16, 2012, and applies to supervisees violating conditions of PRS on or after that date. S.L amended the maximum sentences for drug trafficking convictions to allow for twelve months of PRS for drug trafficking convictions in Classes B1-E and nine months of PRS for drug trafficking convictions in Classes F-I. These maximum sentence lengths are effective for offenses committed on or after December 1, Lastly, S.L granted the PRSP Commission expanded authority to conduct hearings using videoconferencing, effective December 1, In June 2013, the Legislature again made clarifications to the JRA. S.L amended the regular conditions of probation to make it clear that the requirement to not abscond applies to offenders on supervised probation only. It also amended the CRV statute to make it clear that the confinement period must consist of consecutive days (i.e., they cannot be separated). The legislation repealed the requirement that the Sentencing Commission report biennially on recidivism rates for offenders on probation, parole, and PRS participating in programming funded by the TECS program. These changes became effective June 12, The legislation also amended three maximum sentences specified for Class B1-E felonies that were incorrectly calculated in the original JRA bill. These maximum sentences are effective for offenses committed on or after October 1, At the same time, the General Assembly changed one of the policies in the original JRA. S.L allows the court to determine, with a written finding and agreement of the District Attorney, that an offender is inappropriate for conditional discharge under G.S for factors related to the offense. The JRA originally made this provision mandatory for certain offenders. This change applies to offenses committed on or after December 1, In 2014, the Legislature made changes to the SMCP. Session Law eliminated the provision that mandates longer misdemeanor sentences be served in the state prison system, and instead required them to be served in local jails. Pursuant to the change, misdemeanants with sentences greater than 90 days, other than those sentenced for impaired driving, will serve their sentences in local jails that participate in the SMCP (misdemeanor sentences of 90 days or less will continue to be served in local jails). This change applies to persons placed on probation or sentenced to imprisonment on or after October 1, In addition, S.L amended the statutes to require that all misdemeanants sentenced for impaired driving offenses, regardless of sentence length, serve their sentences in local jails that participate in the SMCP. This change applies to persons placed on probation or sentenced to imprisonment on or after January 1,

14 The General Assembly also changed the policy regarding the awarding of credit to the CRV period for felons. Session Law provided that the term of any CRV shall not be reduced by credit for time already served in the case. Any such credit shall instead be applied to the suspended sentence. Originally, the judge was required to award prehearing credit to the CRV period. This change applies to probation violations occurring on or after October 1, In 2015, the Legislature again made changes to the application of CRVs. Session Law eliminated the CRVs for misdemeanants sentenced to probation under the SSA; the CRV remains as a sanction for offenders sentenced to probation for impaired driving offenses. The amendment also provided that the court may revoke probation for the misdemeanant after they have received two separate periods of short-term confinement, which may be imposed either by the court or by the probation officer through delegated authority. This change applies to persons placed on probation on or after December 1, Table 2 JRA Amendment Effective Dates by Provision Date Application Provision July 16, 2012 December 1, 2012 October 1, 2013 PRS violations occurring on or after: CRVs imposed on or after: Offenses committed on or after: Offenses committed on or after: 7 PRS period tolled during reimprisonment CRVs less than 90 days authorized for misdemeanants Drug trafficking maximum sentences increased Certain Class B1-E maximum sentences increased December 1, 2013 Offenses committed on or after: Drug diversion change October 1, 2014 October 1, 2014 January 1, 2015 December 1, 2015 December 1, 2016 Probation violations occurring on or after: Persons placed on probation or sentenced to imprisonment on or after: Persons placed on probation or sentenced to imprisonment on or after: Persons placed on probation on or after: Offenses committed on or after: Credit for time already served cannot be applied to CRV period Misdemeanor sentences greater than 90 days (not impaired driving) to be served in SMCP Misdemeanor impaired driving sentences to be served in SMCP SSA misdemeanants not eligible for CRVs SSA misdemeanants eligible for revocation after two previously imposed quick dip confinements Credit for time served on concurrent CRVs only applies to one sentence upon revocation Credit for time spent in custody as a result of PRS revocation applies to maximum sentence and not three-month reimprisonment

15 In 2016, the Legislature addressed two issues relating to credit for time served. Session Law clarified that upon revocation of two or more consecutive sentences as a result of a probation violation, the credit for time served on concurrent CRVs will be credited to only one sentence. 25 In addition, S. L eliminated the application of credit for time spent in custody as a result of a PRS revocation against the three-month period of reimprisonment; the credit is applied toward the maximum prison term instead. These changes apply to offenses committed on or after December 1, The General Assembly also changed one of the original provisions of the JRA. Session Law eliminated the State Community Corrections Advisory Board that was established as part of the TECS program and created the Justice Reinvestment Council, effective July 1, The purposes of the Council are to recommend policy enhancements to the JRA, assist in the continued education of criminal justice system stakeholders, support implementation of the JRA, and identify new initiatives that further the implementation of the JRA and the Adult Corrections Recidivism Reduction Plan. Finally, S.L authorized the PRSP Commission and hearing officers to conduct all hearings regarding violations of PRS by videoconference, effective July 1, II. SENTENCING PRACTICES The primary changes to sentencing under the JRA included redefining Community and Intermediate punishments, modifications to the existing habitual felon status offense, the creation of a new status offense for habitual breaking and entering, and the establishment of ASR. The utilization of ASR and habitual felon status offenses could have an impact on prison bed resources; however, these options are currently used for only a portion of eligible offenders. The usage of these tools reflects the practices within local jurisdictions and therefore varies across the state. Community and Intermediate Punishments With the redefinition of Community and Intermediate punishments under the JRA, special probation (split sentence) is one of two punishment conditions limited to Intermediate punishment sentences (the other, drug treatment court, is not available statewide). Table 3 examines the use of special probation from CY 2011 to CY 2016, with a breakdown by origin whether special probation was ordered as part of the sentence at initial judgment or whether it was ordered through a modification of probation conditions. Of the 18,263 special probation sentences ordered in CY 2016, 87% were ordered as part of the sentence at initial judgment. The data indicate a slight decrease in the use of special probation at initial judgment, and a corresponding slight increase in the use of special probation at probation modification. Felons and misdemeanants were nearly equally likely to have their special probation sentences ordered at initial judgment (86% and 88% respectively) and to have them ordered through a modification (14% and 12% respectively). 25 For the Sentencing Commission s study of CRV credit and consecutive sentences, see NC Sentencing and Policy Advisory Commission, Justice Reinvestment Implementation Evaluation Report,

16 Table 3 Special Probation by Origin Origin Use of Special Probation CY 2011 CY 2012 CY 2013 CY 2014 CY 2015 CY 2016 Initial Judgment 85% 83% 86% 89% 88% 87% Probation Modification 15% 17% 14% 11% 12% 13% Total 19,943 20,184 19,792 18,799 18,377 18,263 SOURCE: NC Department of Public Safety, Division of Adult Correction and Juvenile Justice Habitual Felon The effect of the modifications under the JRA to the habitual felon law can be seen by examining the composition of habitual felon sentences by offense class. Under the JRA, habitual felons are sentenced in Class C, D, or E depending on the offense class of their substantive offense. Figure 1 shows the number of habitual felon convictions from CY 2011 to CY Habitual felon penalties that are more proportional with the underlying offense have likely contributed to the increase in habitual felon convictions over this time period. Overall, the volume of habitual felon prison entries increased 34% from CY 2011 (prior to the JRA) to CY This increase comes during a time period of primarily decreasing felony convictions. Figure 1 Habitual Felon Prison Entries 1,200 1, , CY 2011 CY 2012 CY 2013 CY 2014 CY 2015 CY 2016 SOURCE: NC Department of Public Safety, Division of Adult Correction and Juvenile Justice, Automated System Query (ASQ) Figure 2 examines the offense class distribution of habitual felon prison entries and the habitual felon prison population. In CY 2016, most of habitual felon prison entries were sentenced as Class C (43%). As of December 31, 2016, the majority of the habitual felon prison population (68%) was sentenced as Class C. Habitual felons sentenced in Class D and Class E receive shorter sentences than those sentenced in Class C, which largely explains the difference in the offense class distribution for entries and 9

17 population. Although modifications to the habitual felon law have affected the offense class composition of habitual felon convictions and possibly the volume of convictions, the practice of sentencing habitual felons in the mitigated range has continued. In FY 2016, 57% of Class C, 70% of Class D, and 53% of Class E habitual felons were sentenced in the mitigated range. 26 Habitual felons continue to account for a substantial proportion of the prison population. Overall, habitual felons accounted for 14% (or 5,127) of the December 31, 2016, prison population of 35,664. Although there was a substantial increase in habitual felon prison entries over the same time period, the population of habitual felons in prison has decreased 3% since December 31, 2011 (with a population of 5,269). While nearly all habitual felons are sentenced to active punishment, based on the statute, it is possible that an habitual felon in Class E could receive a non-active sentence, depending on prior record level. ASQ indicates that there were 2 Class E habitual felon entries to probation in CY Figure 2 Habitual Felon Prison Entries and Population by Offense Class Prison Entries Prison Population in CY 2016 as of December 31, 2016 N=1,017 N=5,127 Other 1% Class C 43% Class E 12% Class C 68% Class E 31% Class D 25% Class D 20% Note: The category other includes safekeepers, CRVs, and possible discrepant data. SOURCE: NC Department of Public Safety, Division of Adult Correction and Juvenile Justice, Automated System Query (ASQ) Habitual Breaking and Entering Felon Based on ASQ data, there were 137 entries to prison and 2 entries to probation in CY 2016 for offenders convicted and sentenced for the habitual breaking and entering offense, which is a Class E felony. Usage decreased 6% from CY 2015 (with 146 prison entries). Since implementation, felony habitual breaking and entering has been infrequently used, despite the potentially large pool of offenders eligible to be convicted and sentenced for this status offense. 26 See NC Sentencing and Policy Advisory Commission, Structured Sentencing Statistical Report for Felonies and Misdemeanors,

18 Advanced Supervised Release Data from DPS indicate the continued limited usage of ASR. Figure 3 provides information on the overall number of inmates receiving ASR sentences since implementation of the sentencing option. The number of inmates receiving ASR sentences decreased from CY 2015 to CY 2016 (from 92 to 76 respectively). The offense class composition of ASR sentences has been fairly consistent over the past few years. The majority of offenders (59%) receiving ASR sentences were sentenced in Class D and Class E for their most serious offense. However, the most serious offense may not be the offense for which ASR was imposed Figure 3 Inmates Receiving ASR Sentences SOURCE: NC Department of Public Safety, Division of Adult Correction and Juvenile Justice Data on ASR usage by county of conviction indicate that ASR has been used in 61 of the 100 counties in the state over the past five years. In CY 2016, it was used in 25 counties, with 5 counties accounting for 50% (or 38) of inmates receiving an ASR sentence. In CY 2016, 101 inmates with an ASR sentence exited prison. DPS data indicate that the majority (87%) were released at their ASR date (i.e., following completion of their reduced minimum sentence length). Expansion of Initiatives CY 2012 CY 2013 CY 2014 CY 2015 CY 2016 To further the principles set forward in the JRA, DPS has worked to identify and extend targeted services and EBP to be used at the sentencing stage. One initiative (described below), the Pre-Sentencing Investigation Pilot, has been expanded since its inception, with plans to expand further in the upcoming year. Pre-Sentence Investigation Pilot Expansion In 2014, DPS started a Pre-Sentence Investigation (PSI) pilot program in Chatham County and subsequently expanded it to Orange County. In this program, probation officers compile information on offenders and prepare reports for the court s use at sentencing. Officers use the same risk and need 11

19 assessment (RNA) they use at intake with offenders who are sentenced to probation. DPS reports that these PSIs will provide more information to help the court make sentencing decisions based on risk and needs, decide whether an ASR sentence would be appropriate, and determine what specific supervision conditions should be imposed. In addition, the PSI will help the court match conditions based on offender risk and potentially provide pathways for certain offenders to move from supervised to unsupervised probation. PSIs will also assist DPS in assigning those offenders sentenced to probation to the appropriate officers and allow identified treatment services to begin immediately after sentencing. Since 2015, DPS has been training probation officers in the nine surrounding counties on how to conduct PSIs for offenders sentenced in Orange or Chatham counties. In 2017, DPS will request ten new probation officer positions to expand this pilot. III. COMMUNITY SUPERVISION The majority of the changes under the JRA affected how offenders are supervised in the community. As JRA provisions have been further amended by legislation, adjusted by policy, or reexamined based on initial outcomes, community supervision has continued evolving. Each year following the enactment of the JRA, the field becomes more settled and established in their understanding and usage of the available tools. Correspondingly, each year offers more information and data related to the use of available tools, their effectiveness, and whether practices have been implemented with fidelity to the intent of the JRA. DPS has demonstrated willingness to continually reexamine its policies and practices for improvement and has made enhancements to existing practices, many in response to available data. The information provided below describes any changes in policies and practices that affected Community Corrections (where relevant) alongside data (where available). As a point of reference for this section, the community corrections population (which includes both probationers and post-release supervisees) was 97,882 on December 31, Risk and Need Assessment and Supervision Level 27 For supervision of the community corrections population, the JRA requires DPS to use a validated instrument to assess each offender s risk of reoffending and criminogenic needs to place the offender in the appropriate supervision level. The Offender Traits Inventory-Revised (OTI-R) is used to assess offender risk and the Offender Self-Report and the Officer Interview and Impressions are used to assess offender need. Using these instruments, there are five risk levels and five need levels: extreme, high, moderate, low, and minimal. Figure 4 examines the risk and need level distribution of the community corrections population. Most offenders were assessed as either moderate risk or moderate need (34% and 39% respectively); a small proportion were assessed as either minimal risk or minimal need (5% and 4% respectively). An offender s supervision level, which determines the minimum contact requirements for supervision, is determined by the intersection of the offender s risk and need level (see Appendix C). There are five supervision levels; Level 1 is the most restrictive. As shown in Figure 5, most of the community corrections population was in Supervision Level 2 (34%), while the smallest proportion of the community 27 See NC Sentencing and Policy Advisory Commission, Justice Reinvestment Implementation Evaluation Report, 2013, for a more detailed description of these instruments. 12

20 corrections population was in Supervision Level 5 (4%). 28 Since the risk assessment was updated in 2012 from the OTI to the OTI-R, the supervision level distribution has remained stable from year-to-year. Figure 4 Risk and Need Level for the Assessed Community Corrections Population on December 31, % 35% Risk Level 34% 40% 35% Need Level 39% 30% 30% 25% 20% 15% 15% 23% 23% 25% 20% 15% 21% 15% 21% 10% 5% 5% 10% 5% 4% 0% Extreme High Moderate Low Minimal Extreme High Moderate n=11,522 n=17,970 n=27,506 n=18,708 n=4,154 n=16,898 n=12,138 n=31,099 SOURCE: NC Department of Public Safety, Division of Adult Correction and Juvenile Justice 0% Low n=16,421 Minimal n=3,304 Figure 5 Supervision Level for the Assessed Community Corrections Population on December 31, % 35% 30% 25% 20% 15% 10% 5% 0% 11% Level 1 Most Restrictive n=8,788 34% Level 2 n=27,671 28% Level 3 n=22,979 23% Level 4 n=18,614 4% Level 5 Least Restrictive n=2,778 SOURCE: NC Department of Public Safety, Division of Adult Correction and Juvenile Justice Community Corrections supervises all non-active offenders (i.e., supervised probationers, post-release supervisees), in the community, regardless of their status as a felon or misdemeanant. Once in the community, the various groups are not supervised based on their group status but based on their risk, need, and supervision level. Little variation was found when comparing the supervision level 28 The supervision level distribution for Figure 5 is based on DPS s RNA process. Additional risk assessments are completed for sex offenders and impaired driving offenders that may result in supervision at a higher level than indicated by the RNA. 13

21 composition of felony and misdemeanor probationers. As such, the supervision level composition of all offenders on probation was compared to offenders on PRS (see Figure 6). When comparing the two populations, the PRS population was more likely to be supervised in the more restrictive supervision levels (i.e., Levels 1 and 2) than the probation population. Seventy-seven percent of offenders on PRS were in Supervision Level 1 (27%) and Supervision Level 2 (50%), the most restrictive supervision levels, while only 42% of probationers were in Supervision Level 1 (9%) and Supervision Level 2 (33%). Figure 6 Supervision Level for the Assessed Community Corrections Population on December 31, 2016 Probation 9% 33% 29% 25% 4% Post-Release Supervision 27% 50% 18% 5% Note: There were no Level 5 post-release supervisees on December 31, SOURCE: NC Department of Public Safety, Division of Adult Correction and Juvenile Justice Caseloads Level 1 Most Restrictive The JRA set a caseload goal for probation officers of 60 probationers to 1 officer for offenders who are determined to be high or moderate risk. 29 To achieve this goal, DPS created a new template model. The new model, implemented in 2014, separates offenders by risk level, reducing caseloads for officers with higher risk offenders and increasing caseloads for officers with lower risk offenders. In some of the more rural areas across the state, probation officers maintain an All Risk template because staffing levels, frequency of court sessions, and/or the makeup of the offender population do not make it feasible to separate caseloads by risk. To assist DPS in reaching its caseload goal, the General Assembly appropriated funding for 175 new probation officer positions. In 2015, DPS completed the hiring process for all 175 positions. As a result of the new template model and the additional positions, DPS was able in 2016 to achieve caseloads of 60 high or moderate risk offenders to 1 officer and 120 low risk offenders to 1 officer. Mental Health Random Control Study Level 2 Level 3 Level 4 Level 5 Least Restrictive As reported in 2015, DPS launched a random control study with the UNC School of Social Work in 2014 to develop more effective responses to the increasing population of offenders under community 29 G.S. 15A (c). 14

22 supervision with mental health needs. 30 Officers participating in the study carry specialized caseloads and utilize evidence-based strategies for managing offenders with serious and persistent mental illness (SPMI). The caseload goal is 40 probationers to 1 officer. DPS received a grant from the Governor s Crime Commission to support the study and conducted it in two counties, Wake and Sampson. In 2016, DPS received additional funding to expand the study. With the help of a Smart Supervision Grant from the U.S. Department of Justice, DPS is implementing the study in six counties: Brunswick, Durham, Guilford, McDowell, Mecklenburg, and Orange. As part of the expansion, DPS is looking at the lessons they learned in the first phase of the study and making improvements. First, they developed a new selection process for identifying the officers who participate in the study. Under this process, DPS reviews the officer s past case planning activities and also surveys offenders he or she supervised. In the survey, the offender is asked to rate the officer s fairness toward them, whether they worked to establish trust, and whether they held the offender accountable. DPS found this selection process to be more effective and intends to use it in the future to identify appropriate officers for other pilot programs as well. In addition, officers, as well as their chief probation officers, will receive additional training in identifying and responding to SPMI offenders, including Crisis Intervention Training, where it is available, and Mental Health First Aid. 31 The Department is also utilizing licensed social workers to oversee the clinical supervision of this special population. However, the chief probation officer will be included in the oversight of the clinical supervision to make sure that the Department is responding to the offender s behavior and not just focusing on their treatment. Finally, DPS is piloting a Functional Ability Rating System for each offender; this is in addition to the RNA. The officer will complete the tool each month and review the results with the social worker. This additional information will enhance the officer s supervision strategies for these offenders. While the study will not be expanded beyond the current six counties, DPS does plan to utilize specialized mental health caseloads in four other counties: Wake, Pitt, Buncombe, and Forsyth. In addition, 23 counties in North Carolina are participating in the Stepping Up Initiative, and DPS believes they could use this strategy in conjunction with that initiative. 32 The Department will be requesting ten new probation officer positions in 2017 to expand the use of specialized mental health caseloads. Treatment for Effective Community Supervision TECS programs provide EBPs to reduce recidivism. Priority populations for TECS include offenders convicted of a felony and those identified as having a high likelihood of reoffending and a moderate/high need for substance abuse treatment. 33 TECS programs are funded through an appropriation from the General Assembly and the Department uses the funding to contract with vendors for the provision of services and the operation of community-based programming. CY 2013 represented the first full year of operation of the TECS program. 30 According to DPS, as of February 12, 2016, 30% of the community corrections population was identified as having a mental health issue. 31 Mental Health First Aid is a course that teaches citizens how to help and respond to people that may be experiencing mental health issues and/or crisis. For more information, see 32 The Stepping Up Initiative is a national initiative to reduce the number of people with mental illnesses in local jails. For more information on the Initiative, see 33 G.S. 143B

23 In CY 2016, 7,593 offenders entered the TECS program; 2,065 offenders were enrolled in TECS on December 31, 2016 (see Figure 7). The number of TECS entries and the TECS population in 2016 were similar to those in 2013, the first full year of operation of the TECS program. The decrease in TECS entries and population from 2014 to 2015 was likely related to the beginning of a new three-year contract cycle on July 1, 2015, with new vendors beginning operation at that time and other vendors discontinuing operations. Figure 7 TECS Population and Entries 12,000 10,373 10,000 8,000 7,019 8,629 7,593 6,000 4,000 2, ,091 2,493 1,219 1,406 2,065 1, Year-End Population as of December 31 Calendar Year Entries SOURCE: NC Department of Public Safety, Division of Adult Correction and Juvenile Justice In CY 2016, 5,298 offenders exited TECS. The majority fell in Supervision Levels 2 and 3 (3,053 or 58%). Very few offenders were in Supervision Level 5 (19). 34 Figure 8 shows completion rates for all offenders exiting TECS in CY 2016 by supervision level. 35,36 The overall completion rate for all TECS participants was 17%. Completion rates were highest for participants in Supervision Level 4 (24%) and lowest for participants in Supervision Level 1 (11%). TECS services include the two traditional TECS programs, substance abuse and cognitive behavioral intervention (CBI) classes (now referred to as Recidivism Reduction Services, or RRS), as well as transitional housing, temporary housing, intensive outpatient treatment (IOP), community intervention centers (CIC), and local reentry councils. The overwhelming majority of offenders served through TECS programs have participated in RRS programs. In 2015 DPS issued a request for proposals (RFP) soliciting vendors for RRS to provide four core services: CBI, CBI Boosters, regular outpatient substance abuse therapy, and aftercare/relapse prevention. In addition, vendors were required to offer mandatory supportive services of employment skill building, education, and health and nutrition classes, with optional services of family counseling, 34 Throughout the report, results for offenders in Supervision Level 5 should be interpreted with caution due to small numbers and, when applicable, are noted in figures and tables. 35 Completed means the offender completed all the requirements of the program. Reasons for not completing TECS include probation violations, participation refusal, inappropriate referral, absconding, never reporting to the program, and release. 36 Offenders with no supervision level established are typically offenders within the first 60 days of supervision during which the RNA process is being completed or offenders who have absconded supervision prior to completion of the RNA process. 16